Local Approaches to Preventing Violent Extremism in Pakistan © Dania Ali/Stars Foundation/Aware Girls
Local approaches to preventing violent extremism in Pakistan © Dania Ali/Stars Foundation/Aware Girls. © Dania Ali/Stars Foundation/Aware Contents
Abbreviations 2 About this report 3 Executive summary 5 Language around ‘CVE’ 7 Background on violent extremism in Pakistan 8 The evolving threat of violent extremism across different regions of Pakistan 11 The threat from extremist groups in Pakistan 12 Pakistani government policies to counter violent extremism: expert analysis 15 Strategic priorities for countering violent extremism 20 Reforming the education system 22 Political, structural and governance reforms 29 Finding new national narratives 30 Aware Girls: promoting peace and empowering women 33 The role of civil society in preventing violent extremism 37 Lessons for the international donor community 39 Conclusion 44 Participants 46
Abbreviations
AG Aware Girls NACTA National Counter Terrorism Authority CSO Civil society organisation Pakistan CVE Countering Violent Extremism NAP National Action Plan FATA Federally Administered Tribal Areas NCEP National Counter Extremism Policy FCR Frontier Crimes Regulation of 1901 for Pakistan JeM Jaish-e-Mohammed SSP Sipah-e-Sahaba Pakistan KPK Khyber Pakhtunkhwa TNSM Tehreek-e-Nifaz-e-Shariat-e- Muhammad LeJ Lashkar-e-Jhangvi TTP Tehrik-i-Taliban Pakistan LeT Lashkar-e-Taiba VE Violent Extremism
Cover image: Young Pakistani boys actively listening in a local community session on the role of men in evading violence against women, human rights and the role of youth in building a peaceful society.
2 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 3 Peace Direct. Local approaches to preventing violent extremism in Pakistan. About this report
• This report is based on a week-long dissenting views as well. In this way, the report consultation and dialogue among 54 leading is a presentation of the ‘wisdom of the crowd’ Pakistani experts on violent extremism. The of a selection of local experts. consultation was held online over a five day period in September 2016. It was facilitated • Background information on certain topics has by Ruairi Nolan from Peace Direct, supported been contributed by Dr Zahid Shahab Ahmed. by Peace Direct’s Local Peacebuilding Expert • Participant quotes are included throughout for Pakistan, Dr Zahid Shahab Ahmed, and Bill to ensure the voices of local experts are Baue of Convetit. highlighted.
• Convetit is an online platform designed to • The contents of the final report are the bring professionals together for intense responsibility of Peace Direct. The text in this dialogues in moderated online engagements. report should not be taken to represent the There were over 400 high quality posts views of any individual participant. analysing the situation in Pakistan.
• Participants included academics, policy analysts and practitioners in civil society organisations that focus on preventing violent extremism. A full list of participants and their affiliations is included at the end of the report.
• During the consultation, participants were able to debate and present a range of different perspectives on key issues relating to violent extremism in Pakistan. Participants were able to challenge each other on their ideas, including sharing content anonymously if they chose to do so.
• Participants were able to indicate support for views shared by other participants by directly commenting, or voting up (or down) other content.
• This report has been written by Peace Direct to present the views of the group on a range of the topics discussed. We have taken care to review and present arguments that
represent the consensus of participants, noting Girls. © Dania Ali/Stars Foundation/Aware
3 Peace Direct. Local approaches to preventing violent extremism in Pakistan. What is a peacebuilder? includes efforts to stop violence once it flares up, for example through mediation, advocacy and Peacebuilding was originally understood to be in indigenous conflict resolution mechanisms. It the context of post-conflict recovery efforts to is stopping violence and destructive conflict as promote reconciliation and reconstruction in the well as building just and sustainable peace. aftermath of war. Often, local peacebuilders have unique But peacebuilding does, and should, start long knowledge of the context they work in, astute before the moment conflict ends. It is a long understanding of the issues affecting their term process which must address the root communities and yet remain overlooked in causes of violence in order to being about longer broader or external peacebuilding strategies and term, positive change. approaches.
In this report, the term ‘peacebuilder’ or ‘local As this report shows, the breadth and depth peacebuilder’ refers to a person working in their of knowledge from local peacebuilders of both community to resolve underlying community conflict and post-conflict environments should tensions and prevent violence before it be a crucial part of all efforts to counter violent escalates, as well as supporting the process extremism in Pakistan, and in peacebuilding of recovery, rebuilding and reconciliation in more broadly. the aftermath of conflict. Peacebuilding also
Photo of the online consultation, hosted by Convetit.com
4 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 5 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Executive summary
Violent extremism has wreaked a terrible toll on is a relatively young and fast-evolving one. Pakistani society, and threatens further damage Its origins in the security and defence arena1, in the coming years. In 2010-2015, more than combined with a dominance by Western-based 10,000 people died from violent extremism, and institutions and researchers, has resulted in little Pakistan is consistently ranked among the top focus on locally-led peacebuilding perspectives five countries in the Global Terrorism Index. and strategies. This report aims to redress that balance by highlighting local analysis and In such circumstances, there can be few higher solutions. priorities for Pakistani policymakers and civil society, and members of the international The results of the consultation held in community who wish to support them, than September with over 60 Pakistani peacebuilding devising effective programmes and policies to practitioners and academics indicate serious counter violent extremism. areas of concern, including particular and growing threats. The participants identified the The field of ‘countering violent extremism’ (CVE) following key findings:
Violent extremism is the greatest only on individuals and their motivations threat to peace in Pakistan. obscures the root causes of violent extremism. These include regional and geopolitical Violent extremism is the gravest threat that developments, political factors in Pakistan, Pakistan faces today. Traditionally, security and issues of corruption and governance. approaches in Pakistan have prioritised Whilst simplistic links between poverty international threats, but these are now and violent extremism are unproven, social eclipsed by the dangers posed by violent exclusion and resentments based on unequal extremist groups operating in Pakistan. The access to resources and representation are urgency in focusing on preventing violent critical in driving support for violent extremists. extremism in Pakistan has never been higher. The Pakistani government’s Violent extremism in Pakistan National Action Plan (NAP) to cannot be narrowly understood counter violent extremism is too by looking only at violent focused on military solutions, and extremists themselves. has not paid sufficient attention
The causes of violent extremism are wide to the root causes of violent ranging. Some of these can be understood by extremism. looking at the factors driving individuals to To be effective, the NAP will need to take a join violent movements. However, focusing longer-term approach as well as tackle issues
1United States Institute of Peace, “Countering Violent Extremism: A Peacebuilding Perspective.” Special Report 336, September 2013. 5 Peace Direct. Local approaches to preventing violent extremism in Pakistan. such as governmental corruption and the The simplistic messages of extremists, often broader ideological climate that supports rooted in a misreading of religious teachings, violent extremism. In other words, the NAP have been remarkably effective in attracting needs to address not only the most visible support across Pakistani society. The symptoms but also the causes of violent weakness of counter messages needs to be extremism. Addressing violent extremism will addressed. However, this should not be done require a “whole-of-government” approach. through a state-centric, top-down narrative. Rather, they should be challenged through a Radical reform of the education range of narratives that celebrate the diversity system is required to equip of Pakistan. Both civil society and the state young people with the critical can develop broader narratives through analysis skills to challenge violent participatory approaches. In particular, extremist narratives. alternative narratives should be developed by and include a central focus on the role Educational reforms need to go much further of women as builders of social cohesion in than looking only at the much-discussed Pakistan. madrasas. While it is vital to better integrate madrasas into the mainstream education All peacebuilding and CVE system, this can only be done through a root strategies must draw on local and branch reform of the state school system. knowledge to ensure they are Reform of social studies and Islamic teaching context-specific. can equip young people with the critical thinking skills and theological knowledge to Dynamics of violence, and violent extremism, challenge extremist narratives. Reform of the vary from region to region, as do the specific curriculum is also needed to promote greater social and political roots of violence. Only tolerance. by adapting approaches to the specific contexts of each region can interveners New national narratives, with develop successful peacebuilding approaches a central focus on the role of to counter violent extremism. This can be women in society, need to be done through working with local groups who shaped to counter the appeal best know the regions, and by supporting and narrative of violent extremist better connections between practitioners groups. and academic and policy institutions with the capacity to analyse the deeper causes of conflict.
These findings underline the size of the task that The report includes practical suggestions for Pakistan faces in dealing with the threat of violent how peacebuilding interventions in Pakistan can extremism. However, despite this, most Pakistani better respond to the challenges presented by experts feel optimistic about a more peaceful violent extremist groups. future in the coming years. This report helps identify some opportunities for effective efforts for peace.
6 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 7 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Language around ‘CVE’
The language that peacebuilders use matters a With communities, we have been great deal. Language can be used to frame issues very careful in using certain words. in a way that can emphasise commonalities and The use of these words in areas bring people together. Equally, language can offend affected by violent extremism can and divide people, either by accident or design. become a source of problems not only for the organisation but for the communities In this report, and the online dialogue which we work with and for. Therefore we use the positive was facilitated by Peace Direct and Convetit, we words of engagement of youth and communities, have used the terms ‘violent extremism’ (VE) and social cohesion, tolerance, and interfaith harmony ‘countering violent extremism’ (CVE). etc. This has worked perfectly well. The term ‘CVE’ has gained increasing popularity Mossarat Qadeem, Paiman Alumni Trust in policy circles, and is used to incorporate a very wide range of actions, from military and Such terminologies are mostly intelligence based approaches, to addressing donor driven and their use by local structural causes, to approaches that might organisations reflects the fact that be more traditionally seen as fitting with local organisations themselves peacebuilding, such as dialogue-based have limited bargaining power (or programmes. capacity) to pursue local solutions to local problems. The language around CVE is a contested and This also sends negative messages to the communities controversial area, and participants shared their we work with. apprehensions and concerns about its use in a Zeenia Shaukat, Independent Expert Pakistani context: Despite this apprehension, the widespread When we borrow terms coined by acceptance of this language among donors and Western media or academia, we policy makers means that local actors feel that also borrow their discourse, which they have little option but to use it: quite often sees events from a single perspective. We use CVE/ preventing Dr. Fatima Sajjad, University of Management and violent extremism (PVE) in all Technology our programmes/projects for our international partners, This is reflected in some apprehension about policymakers and shapers. using such terms in communities: Unfortunately, the concept around CVE/PVE is still not very clear to many, as there has been little or no public discussion and discourse held around this in Pakistan. Mossarat Qadeem, Paiman Alumni Trust
7 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Even I had to use “Islamist To bridge this gap, I would suggest militancy” in my papers that several consultations should for international audience be initiated involving local consumption, even though I never practitioners, policy-makers and felt okay with these terms. These researchers to develop and define are loaded words and Muslim communities across the terms which are acceptable to local communities – globe feel they are offensive. they should be culturally and religiously sensitive Naveed Ahmad Shinwari, Community Appraisal Naveed Ahmad Shinwari, CAMP and Motivation Program (CAMP)
Projects that engage and work There is clearly a need to find better, more with local communities can only culturally sensitive language, acceptable to produce better acceptance and all, which could be done through collaboration impact if an appropriate between policy makers, researchers and communication strategy is in place. practitioners. Naveed Ahmed Shinwari and Raza Shah Khan offered suggestions as to how this That is why development partners and local can be achieved: organisations have now started giving local names to peacebuilding projects such as Umeed-e-Jawan (Hope of Youth), Azm-e-Jawan (Commitment of Youth), and many other very effective and localised terms. Raza Shah Khan, Sustainable Peace and Development Organization (SPADO) Background on violent extremism in Pakistan
The map on the next page shows the toll that and exposure to violence (both directly and violent attacks have taken in Pakistan since the indirectly) – push young people towards start of 2015. There have been almost 4000 radicalisation and ultimately violent extremism fatalities. As the map indicates, no region or acts of terror. of Pakistan has been immune from attacks. Consequently, there have been increased efforts Other factors include local and external issues. towards CVE in Pakistan. These include bad governance, the presence of the Taliban and al Qaeda, and Western In general terms, CVE is aimed at stopping military action against Muslim countries2. extremists from using violence to achieve their In the section below, participants weigh the goals. A combination of factors – grievances importance of these issues. Feyyaz3 highlights aimed at the state, helplessness, inequality another pull factor: ‘inspirational and extremist
2Khan et al. 2012, “Causes and impact of radicalization on youth people inside and outside Pakistan.” European Journal of Business and Social Sciences 1 (3):146-157, 154. 3Feyyaz, 2014, “Youth extremism in Pakistan - magnitude, channels, resident spheres and response.” Defence Against Terrorism Review 6 (1):63-92, 71. 8 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 9 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Recent violence in Pakistan Violent events Jan 2015 - Oct 2016. Hotspots represent multiple incidents in the same location.
3780 Fatalities 2734 Violent events
Fewer Events More events Source: Data via ACLED (acleddata.com) and is sourced from a variety of local and international media and civil society. role models’, who have significant backing through alliances with locally based militants6. in what is an ideological state, the Islamic Republic of Pakistan. Feyyaz names several The Jinnah Institute has explored an increase such role models, including Syed Abul Ala in extremism through tracking the number of 7 Maududi (founder of Jamaat-e-Islami), Hafiz extremist attacks across the country . While the Saeed (founder of Lashkar-e-Taiba), and Haq frequency of extremist attacks decreased during Nawaz Jhangvi (founder of Sipah-e-Sahaba). 2015-16, extremists are gaining political voice. Some, like Maududi, have even received state Recently, in 2016, Masoor Nawaz Jhangvi, son of backing for spreading their views of Islam, in the the founder of extremist group Sipah-e-Sahaba, form of numerous books that are re-published won elections in Jhang, Punjab. and circulated by Jamaat-e-Islami. The party The rise of extremism can also been seen established strong links with the state through through an alarming increase in the number its direct participation in the Afghan-Soviet War4. of attacks on religious minorities in Pakistan Concurrently, there is also an increase in militant – one reason for which the country is ranked groups. According to Amir Rana5 of the Pak among the world’s most dangerous for Institute of Peace Studies, there are around religious minorities by Minority Rights Group 100 militant and Taliban groups in Pakistan. For International. For example, since 9/11, there example, the Tehrik-e-Taliban Pakistan (TTP) have been nearly 170 attacks on Christians, operates in all four provinces of the country, killing 378 and injuring 987 in Pakistan8.
4Ahmed, 2012,”Political Islam, Jamaat-e-Islami, and Pakistan’s Role in the Afghan- 7Jinnah Institute, 2011, “Extremism Watch: Mapping Conflict trends in Pakistan Soviet War, 1979-1988.” In Religion and the Cold War: a global perspective, edited 2010-2011.” by P Muehlenbeck, 275-296. Tennessee: Vanderbilt University Press. 8FD, 2015, “Islamic terror attacks on Pakistani Christians (Since 9/11).” Freedom 5Rana, 2010, “What is young Pakistan thinking?” The Express Tribune, 2 September. Declared (FD). 6Feyyaz, 2014, 79. 9 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Target groups for recruitment Nonetheless, radicalisation of the educated middle class is a new challenge for the The phenomenon of youth recruitment by government of Pakistan. According to Yusuf, extremist groups is not new to Pakistan. The “militancy on university campuses is quickly process has been ongoing since the Afghan- becoming Pakistan’s next major counterterrorism Soviet War in the 1980s. The process has now challenge13.” Similarly, according to Yusuf, most been expanded to both intra-state and external terrorist recruiting in Pakistan happens ‘in groups. For example, the Punjabi Taliban person,’ unlike ISIS’s approach of radicalising continues to recruit youth from marginalised youth through social media14. South Punjab9. The December 2015 case of Rizwan Farook and There are also reports of ISIS (Daesh) expanding Tashfeen Malik - who killed 14 people in San its operations in Pakistan through youth Bernardino in California - has raised concerns of recruitment. According to a report by the radicalisation of youth in Pakistani educational Interior Ministry of Pakistan, ISIS recruited institutions. Malik studied at Bahauddin 40-50 Pakistani youth for their cause in Zakariya University in Multan, graduating in Afghanistan. The report specifically mentioned 2012. While in Multan, Malik also attended the that, “the youngsters are brainwashed and Al-Huda International Seminary, a women-only given training in Afghanistan. They are also paid religious academy with branches in the U.S. and between PKR 30,000 and PKR 50,000 [$300- Canada. According to experts, Al-Huda “draws 500] each.10” much of its support from women from educated, relatively affluent backgrounds.” External factors, such as wars in other Muslim countries, can push Pakistani youth to become Since then the government has been carefully involved in terrorist activities. These young monitoring youth radicalisation in Pakistani people are sometimes graduates of premier universities, but greater political will is required educational institutions, as was the case with to go after organised groups, such as Jamiat – a Saad Aziz, who was involved in the Safoora Goth student wing of Jamaat-e-Islami. bus attack11 and the murder of a human rights advocate. Aziz told the investigation team that It is clear that violent extremism has established he was ‘inspired’ by the sectarian conflict in roots all across the country. The government Yemen and ISIS12. However, it is still disputed therefore needs to develop a comprehensive whether educated youth are participating in acts policy for protecting youth from the reach of of terrorism for purely monetary benefits, for extremist groups. ideological reasons or both.
9Khalid and Leghari, 2014, “Radicalization of youth in Southern Punjab.” South Asian 12Ali, 2016 Studies: A Research Journal of South Asian Studies 29 (2):537-551. 13Yusuf, 2016, “University radicalization: Pakistan’s next counterterrorism chal- 10“Youngsters from Pakistan being recruited in Daesh: report”, Pakistan Today, 2 lenge.” CTCSENTINEL 9 (2):4-8, 4. January 2016. 14Greer, 2016, “Pakistan’s counterterrorism challenge.” Foreign Policy. 11Ali, 2016, “How a student of elite institutions turned to terrorism, JIT reveals.” Dawn, 13 May.
10 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 11 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The evolving threat of violent extremism across different regions of Pakistan Regions facing the greatest threat from violent extremism now and in five years.
2016 Gilit-Baltistan 2021 Gilit-Baltistan Which insurgent/violent extremist group presents the gravest threat to Pakistan? Khyber Pakhtunkhwa Khyber Pakhtunkhwa Tehrik-i-Taliban Pakistan
56%
Other Federally Administered Federally Administered
22% Tribal Areas (FATA) Tribal Areas (FATA)
Lashkar-e-Jhangvi Azad Kashmir 7% Azad Kashmir
Sipah-e-Shaba Pakistan Balochistan Balochistan 5%
Hibut Tehrir
5%
Tehreek-e-Nifaz-e-Shariat-e-Muhammad
2%
Al-Qaeda Punjab Punjab 2%
Jaish-e-Muhammad
0%
Lashkar-e-Taeba Sindh Sindh 0%
Maps based on threat level assessments by participants. Darker red = higher threat. The different regions of Pakistan require context impact of military operations in Swat and FATA. Which insurgent/violent extremist group specific approaches, sincepr esenthe driversts the grofavest conflict thr eat to Pakistan? vary across provinces. Given these dynamics, 2) A potential increase in violent extremism in Balochistan due to the insurgency in that participants in our consultation were asked to Al-Qaeda province. rate which regions of Pakistan face the gravest Tehreek-e-Nifaz-e-Shariat-e-Muhammad
Hibut Tehrir threat from violent extremism, both now (in 3) A potential increase in violent extremism Sepah-e-Shaba Pakistan 2016) and looking five years ahead. in Punjab because the province is home to Lashkar-e-Jhangvi multiple militant groups. For example, Masoor Predicting patterns of future violence is Other Jhangvi, the son of the founder of Sipah-e- notoriously difficult, but participants shared some Tehrik-i-Taliban Pakistan 15 thoughts on why they think the areas at greatest Jaish-e-MuhammadSahaba, was openly supported by Ahle Sunnat risk will change in the coming years. LashkarWal-e-Taeba Jamaat, which is a banned organisation.
There were interesting shifts in the regions the 4) This shows the expected spread of the threat experts expect to be most affected by violent of violent extremism in Pakistan. In particular, extremism. There was a predicted overall increase a rising threat of sectarian violence is seen in Balochistan and Punjab, while participants as a significant factor in changing patterns of expected relative reductions in threat levels in violent extremism. FATA and Khyber Pakhtunkhwa. This shows the expected spread of the threat The views of participants can be attributed to a of violent extremism throughout Pakistan, range of factors: in particular with a rising threat of sectarian violence as being significant in shifting the 1) The decline of violent extremism in FATA and patterns of violent extremism. Khyber Pakhtunkhwa due to the expected
15Islam, 2016, “Jhang by-poll: Masroor Jhangvi beats PML-N man by almost 13,000 votes.” The Express Tribune, 2 December. 11 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The threat from extremist groups Regions facing the greatest threat from violent in Pakistan extremism now and in five years. Survey findings from the online consultation, with commentary by Peace Direct’s Local Peacebuilding Expert, Dr Zahid Shahab Ahmed 2016 Gilit-Baltistan 2021 Gilit-Baltistan Which insurgent/violent extremist group presents the gravest threat to Pakistan? Khyber Pakhtunkhwa Khyber Pakhtunkhwa Tehrik-i-Taliban Pakistan
56%
Other Federally Administered Federally Administered
22% Tribal Areas (FATA) Tribal Areas (FATA)
Lashkar-e-Jhangvi Azad Kashmir 7% Azad Kashmir
Sipah-e-Shaba Pakistan Balochistan Balochistan 5%
Hibut Tehrir
5%
Tehreek-e-Nifaz-e-Shariat-e-Muhammad
2%
Al-Qaeda Punjab Punjab 2%
Jaish-e-Muhammad
0%
Lashkar-e-Taeba Sindh Sindh 0%
In the consultation, participants from across the carried out by TTP and its affiliated organisations, country identified the Tehrik-i-Taliban Pakistan such as Jamaat-ul-Ahrar, which has targeted (TTP) as the biggest threat to Pakistan. TTP is religious minorities across the country. commonly known as the local or Pakistani Taliban. It is the deadliest terrorist group in the country. Since its founding after 9/11, TTP has grown and Most of the terrorist attacks in Pakistan are established deeper roots in Pakistan. The group
12 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 13 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Which insurgent/violent extremist group presents the gravest threat to Pakistan?
Al-Qaeda
Tehreek-e-Nifaz-e-Shariat-e-Muhammad
Hibut Tehrir
Sepah-e-Shaba Pakistan
Lashkar-e-Jhangvi
Other
Tehrik-i-Taliban Pakistan
Jaish-e-Muhammad
Lashkar-e-Taeba became more visible after its leader Baitullah and size of groups active across the country and Mehsud made an announcement in 2007 of an their inability to address the root causes of the alliance of around 13 groups in FATA under the growth of extremist groups. banner of TTP. Since 2009, TTP has frequently attacked both military and civilian targets in Though Al Qaeda has operated in Pakistan Pakistan. Civilian targets have included mosques, through like-minded groups, it is regarded by gas stations, Sufi shrines, and the US Consulate participants as less threatening because attacks in Peshawar, among many others. The group also have generally been conducted by local groups. claimed responsibility for the deadly 2015 attack The groups that received no prominence in the on the Army Public School in Peshawar. poll operate mostly outside of Pakistan. Included Participants also identified Sipah-e-Sahaba in this list is Lashkar-e-Taiba (LeT). LeT was Pakistan (SSP), Lashkar-e-Jhangvi (LeJ), and founded in 1990 in Afghanistan, but is based Hizbut Tahrir as particularly dangerous. SSP is near Lahore under the leadership of Hafiz Saeed. a Sunni sectarian group that has been present The group has mainly been operating in Jammu since the early 1990s. The group aims to ensure and Kashmir or Indian Administered Kashmir. Sunni dominance in Pakistan. LeJ also aims for a Another such group is Jaish-e-Mohammed 17 Sunni state and was formed in 1996 as a Sunni- (JeM), accused of the 2001 attack on the Deobandi terrorist group16. Indian parliament and considered a terrorist organisation by the US government. Hizbut Tahrir is one of the newest extremist organisations in Pakistan. It is a transnational group and recently the government has arrested some Pakistanis working for it.
In 2009, Tehreek-e-Nifaz-e-Shariat-e- Muhammad (TNSM) was responsible for the rise of extremism and terrorists in Swat. Interestingly, participants did not see Tehreek- e-Nifaz-e-Shariat-e-Muhammad (TNSM) as a particularly significant threat. This is probably because the Pakistan Army almost eliminated TNSM’s influence in Swat through operations in 2009, although the leader of TNSM, Maulana Fazlullah, was not captured until his death in an airstrike in 2016. While on the run, Fazlullah joined TTP and became its head following the death of Hakeemullah Mehsud in November 2013. It should be noted that while such military operations in targeted regions offered short- term achievements, their impact has not been
sustainable, not least due to the sheer number © Nadir Burney.
16In the nineteenth century, Deobandi school of thought emerged as a movement of Sunni Muslims in British India. Deobandis wanted to preserve Islamic teaching and practices at the time when they felt that Islamic practices were threated under the rule of non-Muslims. Deobandis also taught spiritual transformation through Sufism. 17http://web.stanford.edu/group/mappingmilitants/cgi-bin/groups/view/95.
13 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Background to the current Government responses: NAP, NACTA and NCEP Local Peacebuilding Expert for Pakistan (as described elsewhere)
Dr Zahid Shahab terrorism was quickly developed. Ahmed This is a 20-point action plan that covers topics from political settlement in Balochistan, In Pakistan’s more than decade-long ‘war on to military operations in Karachi and countering terror’, policy has often been developed in militancy in Punjab. Although it has a range response to events. For example, following the of objectives, it offers little detail. The attack on the Army Public School in Peshawar, following section explores the NAP and the National Action Plan (NAP) on countering other policies in more detail.
The National Counter Terrorism National Counter Extremism Policy Authority (NACTA) for Pakistan (NCEP)
A major failure of the implementation of the Under NACTA, a move has been made to NAP is the slow start-up of the National Counter formulate the first National Counter Extremism Terrorism Authority (NACTA), which can partly Policy for Pakistan (NCEP). Its focus is on be blamed on a shortage of funds. After roughly contextualising the problems, causes, sources, two years, the main developments have been and perspectives regarding extremism in the recruitment of officers for NACTA’s Joint Pakistan. However, NCEP has not yet been Intelligence Directorate. While the government finalised and approved by the government claims it activated NACTA in December 2014, so it is premature to say anything about its the Authority remained dormant for nearly a effectiveness. year. Activities like press briefings on the NAP’s progress have been conducted occasionally.
The National Action Plan be strengthened. 5. Strict action against the literature, newspapers 1. Implementation of death sentence of those and magazines promoting hatred, convicted in cases of terrorism. extremism, sectarianism and intolerance. 2. Special trial courts under the supervision of 6. Choking financing for terrorist and terrorist Army. The duration of these courts would be organizations. two years. 7. Ensuring against re-emergence of 3. Militant outfits and armed gangs will not be proscribed organizations. allowed to operate in the country. 8. Establishing and deploying a dedicated 4. NACTA, the anti-terrorism institution will counter-terrorism force.
14 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 15 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 9. Taking effective steps against religious social media for terrorism. persecution. 15. Zero tolerance for militancy in Punjab. 10. Registration and regulation of religious 16. Ongoing operation in Karachi will be taken seminaries. to its logical end. 11. Ban on glorification of terrorists and 17. Balochistan government to be fully terrorist organizations through print and empowered for political reconciliation electronic media. with complete ownership by all stakeholders. 12. Administrative and development 18. Dealing firmly with sectarian terrorists. reforms in FATA with immediate focus on repatriation of IDPs. 19. Formulation of a comprehensive policy to deal with the issue of Afghan refugees, 13. Communication network of terrorists will beginning with registration of all refugees. be dismantled completely. 20. Revamping and reforming the criminal 14. Measures against abuse of internet and justice system. Pakistani government policies to counter violent extremism: expert analysis
It is quite unfortunate that having of militants in Pakistan, for example, through suffered for decades we are yet the closing of bank accounts18, it has not done to devise effective government enough against all groups. One participant noted polices to deal with issue of violent this issue citing the fundraising capacity of the extremism. CVE policies can only Jamaat ud Dawa group, which is believed to be be effective if these are inclusive and all major able to fundraise through a linked foundation19: stakeholders are engaged and contributing. Implementation on National Raza Shah Khan, SPADO Action Plan has effectively broken the terrorists and extremists The main Government policy to counter violent network all across the country. extremism is outlined in the NAP, established in However, the implementation January 2015 in the aftermath of the terrorist apparently seems ‘selective’. For instance, various attack on the Army Public School in Peshawar. Kashmiri Jihadist groups, publicly Jamaat ud Dawa Some aspects of the NAP have had significant (JuD) are raising funds publically facing no restraint impacts, in particular in targeting the operational from government institutions. capacity of violent extremist groups. While the Anonymous participant government has been trying to disrupt operations
18Zahid, 2016, “Pakistan Freezes Bank Accounts of Suspected Terrorists.” VOA News, 24 October. 19Jamal, 2016, “Pakistan’s Jamaat-ud-Dawa Challenge.” The Diplomat, 2 August. 15 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Participants felt that there is plenty of room for Violence has reduced due to improvement, with some noting that: Operation Zarb-e-Azb, [but] it is unlikely to diminish due to It is unrealistic to expect NAP to structural causes endemic in the achieve all which is directly or body politics and constitutional indirectly contributing to the case provisions of Pakistan. of violent extremism in Pakistan… Muhammad Feyyaz, University of Management Perhaps, the greatest success is and Technology that major stakeholders, if not all, are sitting at a table with a single point of CVE thus creating a shared understanding slowly but surely. This plan identified several Shahab Khalid, Independent Expert important areas of operations but missed one most crucial area – However, there are fears that the youth disengagement. The vast implementation of some aspects of the NAP majority of recruits are children risk further human rights violations, with and young men. It is a formula that hardly varies. the potential to create a backlash that could Ali Khan, YES Network Pakistan exacerbate the situation. There are concerns20 from human rights organisations about the trial of civilians through military courts, and concerns The government [is] yet to task a have been raised about military operations in specific ministry or department Karachi. For example, since the commencement to work on “registration and of the NAP, there has been a reported rise in regulation of the religious extra-judicial21 killings in Sindh and Balochistan. seminaries” – one of the key points of NAP. Firstly, the ministry of interior was There was broad consensus amongst mandated the responsibility; then the ministry of participants that the NAP is far too narrow in religious affairs was directed to take the charge. As of conception, relying primarily on military and now, confusion remains as to which institute actually policing solutions, without sufficient focus on looks after this point. longer-term, root causes of violent extremism. Rashad Bukhari, Peace and Education Foundation The following contributions indicate the shortcomings of such a narrow approach: Furthermore, broader involvement from across government will be required. For example, The National Action Plan (NAP), Naumana Suleman pointed out some of the formulated after the horrific efforts needed in the area of education: massacre of school children in Peshawar, is an attempt to treat only the symptoms and is not addressing the root cause. Asma Nasar, Centre for International Peace and Stability, NUST
20Amnesty International, 2016, “Pakistan 2016/2016.” 21Rizvi, Farheen, 2016. “Pakistan’s Karachi Becomes a Human Rights Nightmare.” Huffington Post, 11 May. 16 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 17 Peace Direct. Local approaches to preventing violent extremism in Pakistan. We need to eradicate hate A lot of policy work is in progress material from the curriculum and the Government of Pakistan (Education Ministry), develop has engaged relevant stakeholders a policy for peacebuilding and and practitioners since February conflict resolution and 2016. interfaith harmony (Ministry of Religious Affairs Dilawar Khan, CODE Pakistan and Interfaith Harmony), and build the capacity of governmental bodies in the peacebuilding area as well as enhance public private partnerships. [The] government has put some thought into the NCEP where it Naumana Suleman, Center for Social Justice will address a larger set of issues that contribute to intolerance and The development of the new National Counter violent extremism. Extremism Policy (NCEP) has been achieved through a broader consultation process, Manizeh Bano, Sahil Pakistan according to participants. This, they hope, should result in a broader, more effective set of strategies than the NAP:
Operation Zarb-e-Azb According to a number of reports, Operation Zarb-e-Azb has achieved military success Launched in June 2014, Operation Zarb-e- against groups operating in FATA. Azb is a joint military action by the Pakistani armed forces against various militants groups While there has been a significant decline in operating in FATA, such as Tehrik-i-Taliban the number of terrorist attacks in Pakistan, Pakistan (TTP), the Islamic Movement of and civilian and military elites claim success of Uzbekistan, the East Turkestan Islamic their policies and operations, militant groups Movement, Lashkar-e-Jhangvi, al-Qaeda, continue to exist and operate in the country. Jundallah and the Haqqani Network. As yet, many of the push and pull factors that drive recruitment into the various extremist groups have not been addressed. © Dania Ali/Stars Foundation/Aware Girls. © Dania Ali/Stars Foundation/Aware
17 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The government’s approach to countering violent extremist narratives: The view from Peace Direct’s Local Peacebuilding Expert
Dr Zahid Shahab are given a $60 stipend per month and the Ahmed government has allocated $3.8 million for de-radicalisation centres. But their reach has been limited to Khyber Pakhtunkhwa Since 2002, the Pakistani government with – a mistake that has also been made by the support of the US government has been international actors. engaged in measures to counter extremist ideologies. However, the message of these The government first needs to take ownership campaigns has not been clear. of military-run centres. De-radicalisation centres should then be established in other The identification of extremists has become areas of the country to benefit vulnerable more difficult because of the US-Pakistan youth, for instance in South Punjab and Sindh. alliance. In the words of Greer22, “many of the There is also a need for the national narrative radicalisation risk factors in Pakistan may be itself to change24. exacerbated by the security-focused priorities of the Pakistani and U.S. governments.” Since the start of the US-led war in Afghanistan, millions of dollars have directly Since the Swat operation23 against local and indirectly been invested in Pakistan for Taliban fighters of TNSM in 2009, there peace-related projects. Consequently there have been limited steps taken towards arrived a wave of international organisations de-radicalising ‘at risk’ groups. So far, the such as the United States Institute of Peace, de-radicalisation centres have been limited International Alert, and Search for Common to certain conflict affected areas in Swat Ground, who have supported numerous and FATA in Khyber Pakhtunkhwa. For programmes, especially in the area of peace example, Sabawoon and Naway Sahar are education. two de-radicalisation centres run by the Pakistani army. In 2015, the government of However, many of the projects have been Khyber Pakhtunkhwa established another focused on Khyber Pakhtunkhwa, a region de-radicalisation centre in Bara Tehsil, for known to have a strong presence of the the psychological counselling of radicalised Taliban and their local allies. This has led to the members of society, mostly youth. The neglect of countering religious extremism in government has so far opened three centres in other parts of the country. It is only recently Bara Tehsil for 600 students. that organisations like USIP have supported peace initiatives in Punjab and Sindh. The During their time at these centres, students experiences of international actors and
22Greer, 2016. 23Witte, 2009, “Pakistani Forces Retake Swat Valley’s Largest City From Taliban.” Washington Post, 31 May. 24Khan, 2015, “Deradicalization programming in Pakistan”, 1.
18 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 19 Peace Direct. Local approaches to preventing violent extremism in Pakistan. local civil society are valuable and the textbooks and media campaigns. government should show interest in learning from them. So far, the government’s message through the NAP and other counter extremism measures is As far as producing a counter narrative is limited to: concerned, that responsibility has been assigned to NACTA. The government has also made 1) De-radicalisation programmes only in some progress in areas like limiting funding for Khyber Pakhtunkhwa and FATA e.g. Mishal, extremists. In this regard, the government’s Sparley, Rastoon, Python, and Heila. campaign “Haq, Haqdar Taq” is noteworthy. 2) Counter terrorism/radicalisation policies, This aims to raise awareness on individual such as madrasa reforms (limited to responsibility while making donations (for registration only), the NAP, and the Pakistan example, through Zakat) so that the money is Protection Act 2014. not used for illegal purposes. It has been a very strong media campaign. However, a proper This approach suggests that the Government’s counter narrative is still required to shield approach to countering extremism is people against extremist ideology through reactive and short-term. © Angela Catlin.
19 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Strategic priorities for countering violent extremism
Given the broad range of issues and causes of Based on a discussion of programmatic areas, violent extremism in Pakistan, there are a wide participants were asked to evaluate both the range of potential areas for programmes to focus feasibility and impact of a range of potential on. The key question for developing strategies ‘solutions’ on a two dimensional axis. The results is considering which approaches are the most are shown in the table below, which shows an feasible, and likely to have the greatest impact. average of the views of participants.
SESSION 5 SURVEY: Assessing solutions to violent extremism
Police / Judicial System Reform Reduce Regional & External Tensions
Higher Stop Government Toleration of Violent Groups Madrasa Sector Reform
Political Reform Counter Extremist Narratives Tackling Corruption Educational Curriculum Reform Federal System Reform Increase Female Participation
Impact Military Targeting of Violent Extremists
Economic Reforms Lower Lower Feasibility Higher
The results of the table reveal some interesting of analysts was made up of experts from findings. Although all approaches had peacebuilding organisations and researchers, it proponents, the average results indicate that is not surprising that less emphasis might be some approaches are seen as much more viable, placed on military approaches. However – many and with greater potential impact, than others. participants were able to acknowledge where military approaches have had an impact on extremists It is notable that ‘military targeting of violent groups. Overall, however, such gains were seen extremists’ was the approach considered both as being counteracted with the ability of groups ‘most feasible’ and lowest impact. Since the group to recruit, and were not seen as sustainable.
20 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 21 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Police and judicial reform significant potential to work with the madrasa (moderately feasible, highest sector, as well as increasing the oversight of their impact) operations. Meanwhile, participants felt that there is considerable opportunity to reform the It might seem surprising that the solution that curriculum and teaching in schools, to promote scored highest for impact was police and judicial the greater tolerance and critical thinking reform. These areas of reform are less a feature essential to change extremist ideologies. of the work of peacebuilding organisations, but this finding suggests that it should have much Tackling corruption (lowest higher focus. The poor quality of the police forces feasibility, moderate impact) across Pakistan is seen as an ‘open invitation’ to extremist groups to operate, and increases Countering corruption was seen by many dependence on military involvement. participants as having potential to reduce levels of violent extremism. However – it was seen as The recent Human Rights Watch Report25 on the least feasible, by a considerable margin (less the police and judiciary in Pakistan notes that feasible even than a reduction in regional and ‘Pakistan’s police are widely regarded as among external tensions). Corruption was a recurrent the most abusive, corrupt, and unaccountable theme throughout the consultation. The institutions of the state’ noting further that ‘The challenge will be for peacebuilders and other corruption and abuse endemic to the Pakistani activists to find ways to counter it, and this result law enforcement system are often described as indicates low levels of optimism for how this “thana culture,” after the Urdu word for police can be achieved. This suggests an opportunity station.’ Meanwhile, corruption, politicisation for peacebuilders to seek alliances with anti- and inefficiency have led to critical failings in the corruption groups. judicial system, weakening its ability to apply the rule of law, and allowing violent extremist groups Prioritising peacebuilding actions to flourish. The views of the participants on the feasibility Educational reforms, including of a range of programmes allowed us to focus on madrasas (moderately feasible, specific areas of action. In the next section, we high impact) analyse the challenges and options for locally led peacebuilding strategies in three main areas, Educational reforms, including of the madrasa emerging from the group analysis of the drivers of system and the curriculum, are seen as strong violent extremism: areas to focus on, with moderately potential for • Reforming the education system impact and moderately high feasibility. Given the reputation of madrasas as key generators of • Finding new national narrative(s) extremist narratives, this might seem surprising. But participants emphasised that there is • Political, structural and governance reforms
25Human Rights Watch, 2016, ““This Crooked System”: Police Abuse and Reform in Pakistan.” 25 September 2016.
21 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Reforming the education system
The education system is both a cause and In addition, the curriculum needs a major potential solution to the problems of violent overhaul, as a number of participants noted: extremism in Pakistan. Some participants felt it is the key area to focus on in order to counter A crucial area to be addressed is violent extremism. the curriculum and contents of our textbooks and other teaching Education remains the key to materials, from primary to post- changing the face of Pakistan. graduate levels, in our educational A large scale change is needed institutions. Such material includes hate-based considering the fact that youth messages and lacks civic education and human rights under the age of 25 constitutes contents. 63% of the total population. Our education and social systems should also be Dr. Fatima Sajjad, University of Management and restructured to promote a sense of civic duty, tolerance Technology and human-friendly attitudes, in the society and that will help to break the nexus of corruption and violent extremism. With one of the most rapidly growing populations in the world Bashir Ahmed Tahir, Independent Expert and a national literacy rate of less than 50%, Pakistan faces critical Educated youth in Pakistan educational challenges. become an easy prey to extremist Rashad Bukhari, Peace and Education Foundation discourses because of the following gaps in our education system: The education system in Pakistan is in need a) Marginalisation of social studies of significant reform. The country has a class- education to hone critical thinking skills of the students based education system, whereby the rich and and to expose them to multiple perspectives on social, elite go to expensive private schools, the middle political issues. class to public schools, and the poor to state schools or else to madrasas. Government policy b) Marginalisation of Islamic Studies (Islamiat), which if has repeatedly failed to ensure 100 percent properly taught can become the most effective counter enrolment in primary school; 12.3 million children extremist strategy for Pakistani students. are out of school26. Dr. Fatima Sajjad, University of Management and Technology
26Wasif, 2016, “12.3 million children out of school in Pakistan.” The Express Tribune, 30 July.
22 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 23 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The role of local groups in highlighting hate sentiments in government textbooks
By Anam Zakaria, historic biases, allowing school children to Independent Expert think critically about the past. It showcases voices from either side through For many years, international research a comparative viewpoint. For example, the has focused on the impact of illiteracy and chapter on Partition includes an interview madrasa education in promoting violent with Urvashi Butalia, an Indian feminist ideologies in society. It is local organisations and publisher. When rescue stories are and activists who have ensured a focus on juxtaposed with violent stories of Partition hate sentiment in government textbooks and children are exposed to diverse and schools, where many are educated. narratives, they are equipped with the skills Projects such as The History Project and to think critically about history and how it The Citizens Archive of Pakistan’s School has influenced conflict. and College Outreach Tours are excellent This cultivates a deeper understanding of initiatives that are effectively tackling diversity and works to curb intolerance extremism. and prejudice which leads to ‘spill overs in Inspired by Indians and Pakistanis staying attitudes and behaviours towards different together in a conflict resolution camp, the groups within Indian and Pakistani societies’. History Project (THP) aims to broaden THP’s Beyond the Classroom initiative has young students’ understanding of history seen a 5 point increase (based on a long term and how it relates to their identity. The way external study of 300 schools) in levels of that history is depicted in textbooks shapes empathy and tolerance in the classes. present and future attitudes. Local organisations have the benefit of The project uses an interactive textbook exploring issues at the grassroots level, comprised of excerpts from three Indian which is vital to address extremism in history textbooks and nine Pakistani practical rather than theoretical terms. It is textbooks. By providing an inclusive thus essential that international research outlook on the historical events leading up be combined with local insights to create to partition, the project works to remove holistic CVE frameworks.
23 Peace Direct. Local approaches to preventing violent extremism in Pakistan. As Zeenia Shaukat noted in our consultation: Foreign Minister of Pakistan, has also pointed out the significance of eliminating policies and Wouldn’t a functional state education system provide practices that alienate people and make them an effective alternative to the madrasas which offer a easy victims of exploitation at the hands of very convenient solution to the poverty-affected and extremist31. According to Joshua, “poverty and low income population to ensure a decent future for deprivation” have driven hundreds of Pakistani their children? youth towards terrorism32.
One of the most notable developments in the Participants were wary of approaches to education system is the growth in the madrasa countering radicalisation through simple poverty sector. At the time of Pakistan’s creation in 1947, reduction. Aside from the fact that poverty there were less than 300 madrasas. The number reduction reforms are difficult to achieve in the now exceeds 35,000. Many studies point to current political structures of Pakistan, there was the rise of Islamisation during General Zia-ul- concern that they would have little direct impact Haq’s era, and the Afghan-Soviet War, for the on CVE: widespread network of madrasas in Pakistan. There is very little empirical The momentum of the growth of madrasas in evidence available on social the 1980s was carried forward. During 1988 to deprivation or frustration triggering 2002, there was a significant growth of Deobandi violence by forcing the vulnerable madrasas, whose numbers increased from 1,779 to join violent extremist groups. to 7,000. “The total madrasas in 1988 was 2,801, Dr Zahid Shahab Ahmed, Peace Direct’s Local 27 which shot up to 9,880 in 2002.” Peacebuilding Expert for Pakistan One key factor for the growth in the number of madrasas is that they are often the only option for I examine traces of ‘latent poor parents. As per one estimate, 9.3 percent of radicalism’ among highly educated, school going children in Pakistan are students in financially well off Pakistani 28 35,000 madrasas . students. Here the analyses linking extremism to poverty, lack of In the aftermath of 9/11, Pakistani madrasas education, marginalization do not hold true. came into the limelight. Since then, several studies have pointed to structural violence and Dr. Fatima Sajjad, University of Management and madrasas radicalising youth . It is often discussed Technology by scholars that poverty is the root cause of terrorism in Pakistan, because it forces parents to Although simplistic links between poverty and send their children to where education is free . extremism are unproven, the impact of social exclusion should not be discounted. There is also a discussion among policymakers in Pakistan about the relationship between poverty and terrorism. Hina Rabbani Khar, a former
27Pakistan Today, 2015, “Report says over 35,000 madrassas operating in Pakistan.” Pakistan Today, 31 July. 28The Express Tribune, 2015, “Religious reforms: 9.3% of school going children are madrassa students.” The Express Tribune, 1 August. 29Ali 2009, Ahmed 2009. 30“Terrorism a socio-economic and political phenomenon with special reference to Pakistan.” Journal of Management and Social Sciences 3 (1):3-14. 31Khar, 2011, “Remarks by the Foreign Minister of Pakistan H.E.” 32Joshua, 2013, “Young, educated and dangerous.” The Hindu, 10 April.
24 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 25 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Poverty alone may not be a driver Pakistan’s madrasas primarily serve but poverty and the gap between the poorest of the poor, providing the rich and poor based on room, board, clothing, and books in injustices and uneven distribution addition to education for many of of economic resources indeed Pakistan’s most vulnerable generate severe grievances. and disadvantaged children, who would otherwise Raza Shah Khan, SPADO likely go without. Yet the madrasas typically lack the capacity to provide a modern, comprehensive, and However, reforming the madrasa sector is still quality education. seen as critical to preventing violent extremism. Rashad Bukhari, Peace and Education Foundation In a 2015 analysis on the state of madrasas in Pakistan, Umair Khalil33 noted that while the However, reforming the madrasa sector is a majority of madrasas do not play a role in the widely acknowledged recommendation from all supply of militants to jihadi networks, madrasa types of stakeholders. students are more likely to back war and militant conflict and are less inclined to support equal CODE Pakistan has addressed madrasa reforms rights for members of oppressed groups than by working with the leadership of madrasas and their counterparts in secular schools. breaking down barriers between the madrasa and mainstream education systems. These He goes on to argue that madrasa education may barriers often exist because many in mainstream produce students with an exclusivist worldview education institutions believe the education which rejects the notions of modernity. “This offered by madrasas to be inferior. mindset”, he says, “…combined with certain legitimate socioeconomic grievances and the belief in sharia as the perfect system of governance, is the basis for radical ideas. These radical ideas are then disseminated through Friday prayer sermons (khutbas) which have become much more politicised over the years and may appeal to political agitation.”
Importantly, while the links between poverty and radicalisation in Pakistan are hotly contested, Malik cites a study by Saleem H. Ali, who found that sectarian groups have the greatest following in areas where there is a high degree of economic inequality. Ali believes that the prevalence of the feudal elite and economic inequality have given madrasas a greater sense of legitimacy as a social movement in the region. This point was echoed by
a number of participants: © Angela Catlin.
33Khalil, 2015, “The Madrasa Conundrum: The state of religious education in Pakistan.”
25 Peace Direct. Local approaches to preventing violent extremism in Pakistan. CODE PAKISTAN: Participatory They are working in collaboration with the approaches to madrasa reform government to develop strategies that address the financial oversights of the madrasas. CODE PAKISTAN’s approach is based on CODE PAKISTAN are also leading initiatives participatory action with madrasa leadership, aimed at removing the barriers between working together to find ways to improve the madrasa and mainstream education systems, education offered to students. They believe such as the University Madrasah Interaction that change should come by engaging with Program, which has successfully generated madrasa leadership and building a good dialogue on national issues between rapport with them. They also believe madrasa university students and madrasa students. The reform should be viewed as an education programme sees enthusiastic participation issue, rather than a law-and-order issue, from university students and madrasa and should not be singled out in knee-jerk students who are eager to discuss problems reactions to high profile terrorist incidents. and find tolerant and inclusive solutions. © CODE Pakistan
26 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 27 Peace Direct. Local approaches to preventing violent extremism in Pakistan. At the same time, the question is not simply about The point made by Anam Zakaria is important quality or resources, and Anam Zakaria points out for future policymakers, since so much of current the dangers of generalising about the likelihood CVE programming is focused on madrasas which of support for violent extremism based on the cater for poor and illiterate target groups. As economic background of an individual: the case of Tashfeen Malik illustrates (see P8) middle class and educated students are arguably I think one needs to be extremely a greater risk than the poor students who enrol wary of generalising about poor/ into madrasas. illiterate individuals being prone Writing in the CTC Sentinel, a magazine aimed at to extremism. In my work across staff from the US West Point military academy, schools in India-Pakistan, I have Huma Yusuf34 points out that: “there is no found that upper middle class students can often strategy yet to confront what officials fear is hold more hardline opinions than their counter parts growing radicalization among Pakistan’s affluent, from low-income backgrounds. Another interesting middle-class population, particularly university trend to ponder over is why so many extremist attacks students... militants with higher education are happen in Punjab (especially in terms of mob violence, better positioned to plan sophisticated attacks, blasphemy charges, etc.) when Punjab is the “more infiltrate elite government and military circles, literate, well-off” province. It makes one question the and facilitate increased connections between link between poverty and extremism and illiteracy and Pakistan-based groups and transnational terrorism. movements... in the absence of a holistic approach Anam Zakaria, Independent Expert to checking the radicalization of university students, this demographic will continue to pose a growing threat within Pakistan.”
Insan Foundation Trust: engaging with youth in higher education
Insan Foundation Trust works across rural and urban Pakistan in collaboration with five universities in four provinces. Insan is an Urdu work that stands for ‘human’ and the organisation works “for and with all humans irrespective of any identity”. They
provide opportunities for youths, women, © Insan communities and civil society organisations Notably, Insan has deeply impacted the life of from various ethnic, religious, sectarian and a young trained militant whose violent actions linguistic backgrounds to engage with each of the past caused many families living in his other. area to leave.
The aim is capacity building, which starts with He was nominated by his university teachers supporting a transformation from within. to take part in a project with Insan and over
34Yusuf, 2016.
27 Peace Direct. Local approaches to preventing violent extremism in Pakistan. the course of a year he has transformed He is now reaching out to all the families he his attitude through attending workshops, forced out of the area and apologising to them. developing material and producing a prize- Insan also focuses on promoting women’s winning documentary35 on the rights of participation in peacebuilding by taking part religious minorities – demonstrating that art in women centric peacebuilding networks and can act as a platform for peace. facilitating initiatives that advocate for gender equality.
YES Network – harnessing young conflict. 56.3 % of participants in the Social people for peace Enterprise Competition on Peace said that as a result of participating in the activity they YES Network Pakistan is promoting a gradual will engage their friends on topics related to shift in youth development. In a concerted peacebuilding within one month, and 43.8% effort to promote youth-led peacemaking said they would share with their friends within efforts that are reflective of local conventions, the next week. the organisation has launched several social enterprise competitions on peace which offer As one participant of a YES project stated technical, financial and mentoring support to “This whole program changed my ideas of youth living in conflict-stricken settings. individualism and changed them to collective goals. My personal success is not only making The projects were launched to address myself good but also making a difference in underlying violence in communities by moving the society which needs an overall change.” beyond the labelling of youth as victims and/ By empowering socially excluded youths or perpetrators of violence to engaging and focusing on the opportunity of young them in peacebuilding efforts, giving them people as transformative agents in society, ownership over their efforts and providing YES Network Pakistan facilitates meaningful them with opportunities for leadership. They lives free of violence, extremism, poverty and encourage youth to use music, sport, media unemployment. and information technology while designing and delivering innovative peace projects that promote tolerance, conflict resolution, reconciliation and interfaith harmony.
The United States Institute of Peace (USIP) confirmed the project has successfully promoted innovative ideas for peace in areas where they are needed the most, © YES Network such as FATA and Quetta. The Social Three events were held to showcase the Enterprise Competition on Peace has talents and projects of students on peace to directly transformed the lives of the youth, the wider public and promote peacebuilding who went on to influence others through through the medium of live performance, sensitisation on issues relating to peace and storytelling and sport.
35https://www.youtube.com/watch?v=4H929p_0duY.
28 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 29 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Political, structural and governance reforms
There are key areas of governance and policy Different governance structures and institutions reform that can reduce the threat of violent have also played a role in fostering conflict. For extremism. In these areas, the capacity of civil example, the existence of the Frontier Crimes society groups to directly implement changes Regulation (FCR) is viewed as a major cause of are more limited, but they can play a role in conflict in FATA: advocating for change. There is a need to understand The nexus between corruption and violent how specific institutional settings extremism is a high priority focus for (formal and cultural) under the peacebuilders, but also one where doubts exist Frontier Crimes Regulation (FCR) about how much can be achieved, at least in the have prevented and hindered short term. Inevitably, a key challenge in achieving opportunities, which arguably has resulted in the reform in this area is government willingness to marginalisation of tribal communities, especially poor tackle the problem, which is why participants tribal Pukhtuns. rated reform in this area as less feasible than Naveed Ahmad Shinwari, CAMP other areas.
The role of the Pakistani government and army The government’s inability or unwillingness to as a patron of some violent groups was cited enforce the rule of law across the country has repeatedly as one of the long-term causes of the aided the growth of violent extremist groups. situation today. Ending policies of supporting Violent extremists continue to have bases in some violent groups for strategic reasons has had Pakistan for fundraising and youth recruitment. unintended consequences, and stopping those Here the writ of the state is very important policies as soon as possible could reduce the and the government should ensure that places threats of violent extremism groups. breeding violent extremism, such as training camps, are stopped from operating36.
The Frontier Crimes Regulation Often jirgas implement strict penalties in order to enforce their verdicts, and citizens cannot All civil and criminal cases in the Federally appeal outside FATA’s jirga system in either Administered Tribal Areas (FATA) of Pakistan provincial high courts or the Supreme Court of are ruled by a jirga (council of elders) under Pakistan. the Frontier Crimes Regulation of 1901 (FCR). This means that the laws of Pakistan do not The FCR continues to receive criticism from apply to FATA because the region has its own legal experts and human rights groups for its laws based on local customs and traditions, provisions, particularly pertaining to collective for example relating to dispute resolution. responsibility. Other than the mechanism of
36Khalid and Leghari 2014, 550.
29 Peace Direct. Local approaches to preventing violent extremism in Pakistan. implementation, the FCR has been heavily According to Afridi37, “the application of criticised for section 21 relating to collective collective punishment thus disregards responsibility that punishes the whole tribe individual culpability and identifies the for one person’s crime. innocent with the guilty.”
Finding new national narratives
A consistent fear for peacebuilders is that while For young and marginalised groups, violent extremist groups can offer simplistic but various manifestations of identity compelling narratives, those who oppose them may be conceived as coping have struggled to present compelling alternatives strategies or tactics, depending on that can be more attractive to vulnerable groups the environment in which they live. targeted for recruitment. The weakness of the For example, Oskar Verkaaik in his ethnography of the state has also allowed extremist narratives to Muhajir Qaumi Movement38 (MQM) in Karachi shows flourish, as Dilawar Khan Notes: that urban youth imagine large-scale ethnic-religious violence as an opportunity for self-assertion and ‘fun’. To me the structural cause of VE Naveed Ahmad Shinwari, CAMP in Pakistan is the weak image of the State in the eyes of a local Those who oppose violent extremist groups need Pakistani. Imagine a public school, clear narratives that challenge the world view a public hospital, and a local court of the extremists. As defined by the Stronger in remote area of Pakistan. The broken benches of the Cities Network, “a counter-narrative is a message bar, the wall-less schools and the doctor-less hospitals that offers a positive alternative to extremist represent the image of the State in the minds of a local. propaganda or pushes back by deconstructing, They look at these broken promises and decide to look delegitimising or demystifying extremist for an alternative - that is when the extremist groups narratives.”39 According to Naveed Ahmad ensures them of justice, and a speedy one. Shinwari, the Pakistani state has struggled to Dilawar Khan, CODE Pakistan offer a sufficiently positive vision that can offer a compelling alternative for those at risk of joining One strength of extremist narratives is the sense or supporting violent extremist groups: of identity it can offer to young people, as Naveed Ahmad Shinwari notes:
37Alfridi, 2012. 38MQM is a movement that emerged initially as the sole voice of Urdu speaking migrants from India. It has been behind violence and numerous targeted killings. There continue to be allegations of MQM using violence as a political tool and of perpetrating criminal activity such as election rigging and money laundering. Many of its leaders have now left the country due to military operations against the organisation. 39http://strongcitiesnetwork.org/wp-content/uploads/2016/05/Briefing-Paper-1.pdf
30 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 31 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The narrative from the state In my view building ‘one national is missing, while the terrorist narrative’ and imposing it ‘from narrative is clear and helping them above’ is counterproductive. Let recruit. National consultation of us instead encourage respect for all stakeholders—including civil diversity of perspectives and society—may help us come up with a clear narrative a dialogue among plurality of opinion. and direction to beat militants’ narrative. I would Dr. Fatima Sajjad, University of Management and reiterate that young generation should be given a voice Technology in decision making processes. Naveed Ahmad Shinwari, CAMP Deep understanding of the local contexts and target audience is Some participants went further and suggested crucial before coming up with any that the Pakistani state has actually strengthened peace messages. Similarly, any the extremist narratives, through toleration or counter narrative without clear- encouragement of specific extremist groups: cut understanding of the extremist narratives and local context might not have much value and even can be Successive military and civilian counterproductive. For instance, Sufi teachings and governments have undesirably messages might have more positive influence in South toyed with religion, making its Punjab or Sindh than KPK. socio-political discourse inevitably Islamist. In other words, Nasreen Samad, SPADO because of its failure to create an alternative national narrative for a federation comprising diverse ethnicities Our education and social systems and cultures having cross-border linkages, the state should also be restructured to has held on to the crutches of religion. The trend has promote civic sense, tolerance, manifested itself in various jihads waged by Pakistan’s sense of responsibility and human- “tolerated” extremists in Afghanistan and Kashmir in friendly attitudes, in the society and the past and within Pakistan now. that will help to break the nexus of corruption and Aarish Khan, CODE Pakistan violent extremism. Bashir Ahmed Tahir, Independent Expert However, defining counter-narratives should not solely be the preserve or the responsibility of the government. Civil society in Pakistan can play a key role in developing a wide range of different narratives. Policymakers and peacebuilders need to encourage diversity in messaging, tolerance, and sensitivity to specific contexts, as suggested by Dr Fatima Sajid and Nasreen Samad: © Dania Ali/Stars Foundation/Aware Girls. © Dania Ali/Stars Foundation/Aware
31 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The role of women needs to be central to Women’s perspective should be narratives that challenge that of violent the core. Why women? Extremist extremists. The narrative used by violent narratives in patriarchal societies extremists in Pakistan has been consistent in bring socio-economic, political, claiming that women need to be excluded from psychological, sexual, emotional the political sphere. Many participants noted how impact on women. These range from verbal abuse important it is that this narrative is challenged: to rape. Women are more than 50% of world’s population - it is their right to be part of every decision Historically in our local traditions making process about the future of their families and and culture, women have played an communities. important role for the promotion of Kishwar Sultana, Insan Foundation social cohesion and harmony in the society. We need to revive our The case study below tells the story of a project run true culture where women have equal rights and by local organisation, Aware Girls, which directly participation but they have suffered the most due to challenges the extremist narrative by encouraging violent extremism. young women to participate in the political process. Raza Shah Khan, SPADO The organisation was founded by sisters Gulalai and Saba Ismail, who have been selected by one national newspaper as amongst the ten most influential women in Pakistan40. The project has not only increased female participation in the electoral process but has used citizen committees to ensure female participation is increased more broadly in the communities. © Peace Direct/Aware Girls Direct/Aware © Peace
40Ashfaq, 2016, “10 Pakistani women who made us mighty proud in 2016.” The Express Tribune, 23 December.
32 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 33 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Aware Girls: promoting peace and empowering women © Aware Girls
Aware Girls (AG) is a non-profit organisation girls can play a powerful role in CVE and work working in Khyber Pakhtunkhwa, the north- to empower them as agents of peace in a deeply western province of Pakistan. They are a youth patriarchal society. led organisation working at a grassroots level to build peace, promote tolerance and counter A recent project: Strengthening Women’s violent extremism. Aware Girls run programmes Participation in Political Processes in Khyber that train young people in conflict resolution. Pakhtunkhwa (2013 -2016) focused on improving public awareness of electoral procedures. As a Once trained, peace activists go into schools, result, the percentage of women participants universities and madrasas to engage other young interested in civic and political processes in their people on topics of peace, non-violence and the community and country increased from 49% to negative role of militant groups. Others run local 86%. Weak governance structures are one of the campaigns or start youth groups aimed at pulling factors that allow the Taliban to recruit in rural young people away from militancy. The founders, Khyber Pakhtunkhwa, and the project inspired sisters Gulalai and Saba Ismail, advocate for a vital step towards a more peaceful society by women’s rights. They recognise that women and strengthening those structures.
33 Peace Direct. Local approaches to preventing violent extremism in Pakistan. “When I joined the training and attended Gulalai’s FATA and discussed the Taliban issue. My basic sessions, I was amazed that whatever she was drive to understand the issue led to a complete telling the participants was not against the religion. transformation of my thinking. The late-night She was only advocating human rights and peace. discussions with Gulalai and the participants of She talked about respecting the beliefs of other this training gave me a new understanding of the religions. I ended up completing the five-day world around me, about women’s rights, political training and volunteered myself for the cause of leadership, and peace and conflict resolution. I promoting pluralism. I told Gulalai about my initial started volunteering for the first time in my life, motive of attending the training and pledged that with Aware Girls… I am looking after two projects, I would work to counter extremism. I was a totally one on peace and the other on political leadership… changed person by the time I returned home”. I feel greatly empowered when I help other girls Jahangir, project participant expand their horizons through Aware Girls. Many of my female students have joined active politics. “When Talibanisation was on its peak in Some have established their businesses and a Waziristan, I was very sceptical and confused; number of youth have been saved from losing on one hand I used to hear about Jihad and on their lives at the hands of Taliban. Aware Girls the other about peace and tolerance. I was very empowered my life and polished my leadership patriotic about Waziristan therefore, I wanted to skills and I will continue to do so for other young know what was happening in my area. That is when women.” I learnt about Aware Girls and attended their Peace Alina Shah, project participant Building Training, which focused on the youth of © Peace Direct © Peace
34 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 35 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Renaissance Foundation for Social Innovation: countering extremist narratives in universities
By Muhammad Ayub runs conflict resolution programmes and peace fellowship conferences. It aims to create social harmony in Pakistan by countering negative social influences that can lead Renaissance Foundation for Social Innovation to uninformed decisions or unconscious works for peace and tolerance. It was engagement with extremist organisations. established in 2011 in response to increased violent extremism and radicalisation. Its In 2015 they launched “Mashal e Rah”, a objective is to counter violent extremism counter narrative campaign to challenge through social innovation. After conducting extremist ideologies, which engaged with nationwide research, it found that extremist more 2000 students in 17 universities of organisations across Pakistan influence Pakistan. During the campaign, it received vulnerable young people on the basis of guilt very difficult questions, which were addressed and shame. in dialogue sessions. The Foundation recently launched a website aimed at countering cyber The Foundation identified early dialogue as an extremism and raising awareness, particularly effective form of conflict prevention, and so among the youth. © RASIP website
35 Peace Direct. Local approaches to preventing violent extremism in Pakistan. PAIMAN: CVE through networks of 2008. The 65 male and 35 female Tolanas mothers carry out community meetings to sensitise their respective communities regarding the PAIMAN works to ‘eradicate injustice, poverty, negative impact of violent extremism, and disharmony and conflicts from society’. their role in recognising and responding to It established Pakistan’s first Centre for early signs of violent extremism in individuals Conflict Transformation and Peace Building, and communities. in Islamabad. The Centre acts as a resource centre and training institute on peacebuilding It also motivates them to work collectively to and related topics, and seeks to generate develop social cohesion and peace through organic conflict resolution practices and the use of various tools. Tolanas have explored structures. local ways of mediation, negotiation and reconciliation, and have been very effective The EU has cited PAIMAN’s model of internal community peace structures in the form of youth and mother Tolanas – a Pushto word meaning togetherness – as best practice for CVE, because it is rooted in the cultural milieu and religious traditions of the area, which makes it sustainable. With this model, communities are empowered through mediation and dialogue, which creates awareness on the early signs of violent extremism in individuals and
communities. It also allows communities © PAIMAN to develop locally appropriate responses accordingly. in addressing some of the fears and issues pertaining to violent extremism in KPK and Working closely with community groups, FATA. So far PAIMAN has been able to reach Tolanas have contributed to the resolution out to 45,000 male and 17,500 female directly of 54 feuds and the prevention of 8 cases of in different parts of KPK and FATA. violent extremism. Communities which were once victim to violent extremism are now PAIMAN’s TV drama series, conscious of early warning signs and able to KhobVeenumAlama (‘I have a dream’) was address the root causes of violent extremism aired in 2013. It is based on the true stories before they are amplified. of PAIMAN’s de-radicalised youth and their mothers. After this, 67 educated mothers Youth and mothers are called PAIMAN including doctors, lawyers and teachers from Peace Practitioners after receiving capacity different parts of Pakistan called PAIMAN to building training. They become members of ask to participate in their Mother’s training, so Male and Female Tolanas in their area. They they could learn the skills to prevent their sons have worked at the community level in FATA from becoming extremists. and Khyber Pakhtunkhwa province since
36 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 37 Peace Direct. Local approaches to preventing violent extremism in Pakistan. The role of civil society in preventing violent extremism
The growth of peacebuilding worldwide over the Local organizations have the past 20 years has been mirrored in Pakistan. The benefit of exploring issues at the peacebuilding sector in Pakistan comprises a wide grassroots level which is essential range of actors, including local NGOs, think tanks if we are to address extremism in and academia working with communities and practical rather than theoretical policymakers. terms. It is thus essential that international research is combined with local insights to create holistic CVE There has also been growth in international frameworks. organisations and donor agencies for peacebuilding work, and groups including USIP, Anam Zakaria, Independent Expert Search for Common Ground and International Alert now have offices in Pakistan. Peacebuilding The causes, dynamics and work is often carried out through support to local approaches to CVE have to be very civil society groups, not least since the security context specific, localized and it situation in much of the country precludes direct may not be accurate to always take international programmes. Many embassies have international research as a yard also supported local civil society groups. stick for designing projects.
Peace Direct has been researching the Shahab Khalid, Independent Expert peacebuilding work of Pakistani organisations since 2010. We have profiles of over 140 local However, there are obstacles to the work of peacebuilding organisations on Insight on civil society peacebuilders, not least security Conflict, our mapping project for peacebuilding concerns; over 40% of surveyed participants groups around the world. The Pakistan section is felt the security situation for peacebuilders in the largest and most vibrant of the 44 countries Pakistan is ‘dangerous’ or ‘very dangerous’. They profiled, showing the level of peacebuilding face further practical obstacles: activity that exists in Pakistan.
A repeated concern of all participants is the importance of understanding the specific local dynamics of violent extremism. Local civil society groups have a vital role in peacebuilding strategies because of their proximity to the drivers of violent extremism. Examples of effective programmes by local groups have been included as case studies in this report to highlight key successes: © Dania Ali/Stars Foundation/Aware Girls. © Dania Ali/Stars Foundation/Aware
37 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Some level of coordination is These challenges can be exacerbated by a lack of lacking between state institutions coordination and cooperation: and CSOs. The attitude of government institutions towards There is a great lack of coordination NGOs/INGOs is not very positive and communication among the and if state institutions have such a negative approach CSOs themselves and mostly towards local organisations and international NGOs organisations work either in then the same is reflected in the local communities isolation or in quite unhealthy where CSOs face a lot of challenges while dealing with and non-productive competition. Hence, there is a local communities and state institutions. need to create an environment of learning and sharing Many good projects and programmes are unable to get so that better understanding about the issues are permission from the government to operate in conflict- generated and debated. affected areas. The government is further squeezing Raza Shah Khan, Sustainable Peace and Development local CSOs by imposing extra procedures and approval Organization (SPADO) to get foreign funding. Shahab Khalid, Independent Expert © Gul Hamaad Farooqi, Ground Report.
38 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 39 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Lessons for the international donor community
International support for peacebuilding work in Pakistani NGOs, by pursuing and Pakistan has increased markedly in recent years. becoming dependent on funding Participants noted that without international for executing their agenda have support for peacebuilding activities in Pakistan, somehow become trapped into an it would be hard to find alternative options for order where their very basic funding. One participant summed up the reliance operations are defined and controlled by the donors. on international funding: This is not to say that donors have any ill will. But this approach stops NGOs from expanding their outreach, Neither the government nor the and working effectively. If they fail to work effectively philanthropists or corporate and follow up on their initiatives, and merely act as sector are interested in the field of an executing agency for agendas not crafted by them, peacebuilding. It’s only the INGOs they will not only lose support from the general public who are funding peacebuilding and the state, this will also erode their own capacities projects in Pakistan. to evolve and grow into solid, resilient structures Mossarat Qadeem, Paiman Alumni Trust contributing positively towards addressing issues in the society. Whilst many good programmes have been Zeenia Shaukat, Independent Expert developed, participants noted key lessons for improving support. At the same time, Aarish Khan noted that donor processes are a key factor in killing the ideas and 1. Allow local groups space to initiatives of local groups: devise their own programmes
Above all, participants expressed fears that dependency on donors, and acting under donor restrictions, will counter the effectiveness of local groups. Donors need to allow more freedom to local groups to devise their programmes. This also means a greater tolerance for risk and experimentation in programmes. The risks for NGOs in becoming dependent on funding was encapsulated by one participant: © Angela Catlin
39 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Most of the international donors The majority of local organizations have so many process-related work on a business model by requirements for their local developing and implementing partners, even in relatively smaller projects to ensure their projects. So even if the idea is sustainability and existence… brilliant and the work plan is great, but the organization They lack proper direction and skills to comprehend is not old enough, or has not done a similar work in the vast areas of CVE and deliver accordingly. Further, the past, or cannot provide the required “cost-share” the organisations at times shift their paradigm with in the project, or does not have three years’ worth of donor trends and hence are not fully focused on the audit reports complying to certain locally unheard subject. of (and at times inaccessible) documents, the local Lubna Javaid, Independent Expert organization will not get the project. Bureaucracies are skilful killers of ideas and initiatives. It would help When donors have good local partners, they the international donors to be less bureaucratic to also need to give higher priority to in-project enable them to take little risks worth taking for the learning, rather than just pre-determined project sake of learning and trying out new ideas. goals. Zeenia Shaukat gave one suggestion as to Aarish Khan, CODE Pakistan how this can be achieved:
The potential negative effects of international Donors should think outside time- aid for groups in Pakistan have been most bound, quantitative result oriented notably written about by Masooda Bano in measures. her book ‘Breakdown in Pakistan: How Aid Zeenia Shaukat, Independent is Eroding Institutions for Collective Action’. Expert Since Pakistan is one of the world’s largest recipients of international aid, there are dangers 2. Support more collaboration that funding can create perverse incentives between researchers and and stimulate the creation of agencies whose practitioners primary aim is to generate funds for themselves, rather than to benefit the communities they One specific strategy to improve local represent. The experiences of participants peacebuilding interventions identified is to backed this analysis, as for example noted by increase collaboration between academic Dr Syed M. Ali Shah and Lubna Javaid: and policy institutions in Pakistan with local peacebuilders. Several participants highlighted There is a lucrative business the current paucity of collaboration between model called “NGO programming”, researchers and practitioners, as summarised by whereby sassy imported ideas and Lubna Javaid: concepts that make no contextual sense or relevance are brought to the table to obtain funding from donors and to make colourful news photos. Dr Syed M. Ali Shah, Independent Expert
40 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 41 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Local peacemakers are key Enhancing capacities in the stakeholders in the entire process. area of 1) peacebuilding They have the understanding concepts approaches and tools, of the issues and the wisdom to 2) peacebuilding designing, address those. However, they monitoring and evaluation, and seldom make part of the policy discussion forums. 3) conflict analysis and resolution would be helpful. Lack of channels to feed in their voices and In order to bring in the perspective of attaining recommendations in the policy further makes it positive peace in the stated objectives of the difficult to understand and address the issues at the peacebuilding initiatives, a long term and intense local level. engagement is required from both the implementing Lubna Javaid, Independent Expert organisation and the donor partner. Naumana Suleman, Center for Social Justice This is symptomatic of a wider problem within the peacebuilding sector in many countries: Local organisations need to build the yawning gap between those who conduct their capacities in conflict sensitive research on conflict and peace, and those who approaches to peacebuilding practice it. and CVE. Even development It is critically important that this gap is closed, to interventions when implemented enable practitioners to participate in research in the conflict areas become part of the conflict so that it becomes more operationally relevant, context hence conflict sensitivity need to be adopted and to ensure that practitioners benefit from the during such interventions. lessons generated by researchers. Raza Shah Khan, Sustainable Peace And Development Organization (SPADO) 3. Support capacity development in CVE 4. Find new ways to talk about The rise of violent extremism presents a severe violent extremism challenge to civil society activists. Participants acknowledged that in many cases local The international community also needs to peacebuilders lacked sufficient skills in analysis, consider different ways to talk about ‘violent and then developing effective programmes extremism’. This could be done through to counter violent extremism; a finding extensive consultation amongst practitioners that was echoed in a recent USIP report41. and communities affected by violent extremism. Therefore, international partners can play a (See the discussion on language and violent role in providing capacity support in this area. extremism on pp 7-8) Participants suggested some specific priorities:
41 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Recommendations for government policies
Below are some • The National Action Plan (NAP), which was recommendations generated rushed through in the wake of the Peshawar through the consultation: Army School massacre, needs to be reviewed and revised. It needs to be based • Military action will not eliminate extremism on a broader consultation with stakeholders from Pakistan. Instead, a ‘whole of across the country, including civil society government’ approach is needed, including practitioners and analysts, so that objectives simultaneous reform of the education, do not undermine efforts at CVE, and to police and judicial sectors, as well as ensure that targets are more relevant and tackling corruption across all branches are clearer. of government. Relevant interagency • The NAP also needs to have greater mechanisms are necessary in order to transparency and accountability ensure effective communication and mechanisms, to improve governance and coordination. minimise the risk of corruption. • Specific efforts must be made to reform • The Government needs to implement a the education system in order to equip clearer policy to tackle hate speech. While young people with the critical analysis skills the Cyber Crime Bill includes a provision to challenge violent extremist narratives. on hate speech, there is lack of a specific/ This must go further than reforms of the comprehensive legal framework on the madrasas and must include reform of the issue. school curriculum, particularly in social studies, history, Pakistan studies and Islamic • The presence of militant organisations studies. across the country, especially in Punjab, raises questions about the selective • Addressing economic, social and gender implementation of the NAP. There is a need inequality is essential in order to foster to show “zero tolerance” in letter and spirit a culture of pluralism and tolerance in towards all militant organisations. Pakistan. Good practice already exists across Pakistan, some of which is contained • The National Counter Terrorism Authority in this report, so the government must Pakistan (NACTA) should play a greater build on what it and civil society has been role in producing a national level counter able to achieve in specific locations and narrative to extremist ideology that replicate it nationwide (for example the de- continues to spread hatred and violence radicalisation centres for former militants; in the country. However such a counter the History Project featured on P23). narrative must be flexible enough to adapt
42 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 43 Peace Direct. Local approaches to preventing violent extremism in Pakistan. to local contexts and to accommodate • There is a need to address the structural other counter-narratives developed by issues of poverty, inequality and civil society and citizens. marginalisation as root causes of violent extremism. • The NAP should focus on vulnerable and ‘at risk’ groups, for instance young people, who • Constitutional issues such as the status of are the biggest segment of the population FATA and the Frontier Crimes Regulation and most vulnerable to extremism. (FCR) continue to fuel extremism. Therefore a constitutional review should be enacted to • The government should assign a ministry/ resolve these contentious issues. department for the registration of madrasas. Curriculum reform should cover public • As several NGOs have been working on schools and madrasas, and there needs CVE in Pakistan for over a decade, the to be a greater level of engagement with government should work closely with a madrasas, rather than simply registration. select group of NGOs in order to learn from their best practice. © Jenny Downing. © Jenny
43 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Conclusion
Peace Direct’s approach is rooted in the belief strategies to tackle the problems of violent that local groups are critical to the success of extremism. What is required is more space and any peacebuilding process. This does not just support for these strategies to be enacted, both mean at the point of delivery of a project, but from the Pakistani state, and other supporters also at the earlier steps of analysing the conflicts within Pakistan and beyond. and evaluating possible responses. The problem of how to prevent violent In the case of Pakistan, too often the voices of extremism is an immensely complicated one. local experts are overshadowed by external As this report demonstrates, the causes of experts, where international donors have violent extremism are many, and contested. On sometimes shown a lack of trust in local one level, the decision to join violent extremist expertise or capacity. The quality of analysis as groups is one made at an individual level, with as part of this consultancy is proof that there is many complex motivations as there are people. no shortage of capacity amongst Pakistani civil At the same time, there are a range of structural society groups to creatively analyse and devise factors in Pakistan which have allowed violent extremist groups to take root. It is unsurprising therefore that there are a range of competing priorities for anyone seeking to counter the rise of violent extremists.
Given the complexity of the issue, and the range of possible courses of action, it therefore makes sense to bring in a range of perspectives when devising policies. Through dialogue among experts from across sectors and regions of Pakistan, we have explored different analyses of the key causes of violent extremism, and weighed the benefits of a range of strategies.
Inevitably, participants were unanimous that there is no one solution to violent extremism, and it can only be addressed by a broad range of actors and activities. In a sense, a wide range of possible actions remain open to practitioners, and those who wish to support them. At the same time, we hope this report helps indicate some avenues likely to be particularly fruitful. In particular, participants explored options for programming in three areas: © Angela Catlin.
44 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 45 Peace Direct. Local approaches to preventing violent extremism in Pakistan. © Peace Direct. © Peace • Reforming the education system greater collaboration among practitioners and researchers. The current gap between • Finding new national narratives the two means that much of the high quality • Political, structural and governance reforms research in Pakistan is still not resulting in better programmes by practitioners. Whilst the report highlights the capacity of local experts to combat the threat of violent All participants who contributed to this analysis extremism, there remains a critical role for had to focus on the brutal impact that violent external actors who seek to support them. The extremism has had on Pakistan. And yet despite report highlights the priorities of local experts the difficult topics we discussed, what was most in this regard, which includes a radical shift in noticeable were the positive contributions that programming, from a model that has sapped the came from the group. Rather than despair at initiative and control of many local groups, to a the levels of violence, instead participants were new approach that allows them more latitude to spurred to share their ideas on confronting the develop their own initiatives. violence. Furthermore, when surveyed, most felt optimistic that Pakistan will have a more This will require a greater degree of tolerance peaceful future. At the end of this report, all of risk on the part of funders, but could allow for participating groups are listed. Finding more more sustainable achievements in the longer- ways to support such civil society is a practical term. There is also an opportunity to support way to bring that peaceful future a step closer.
45 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Participants
Since 2010, Peace Direct has mapped local peacebuilding groups in Pakistan. For an interactive map of more than 140 local organisations, visit: www.insightonconflict.org/conflicts/pakistan/ This research formed the initial basis for participants for this consultation. A map of participating organisations, plus short profiles, is included below.
SPADO Peace and Education Foundation IPAD Just Peace Initiatives Paiman Alumni Trust Swat Youth Front Peshawar University International Islamic University Khadim ul Khalaq Foundation Centre for International Peace and Stability Strategic Vision Institute National Defence University Pakistan Peace Collective Omar Asghar Renaissance Foundation for Social Innovation Khan Foundation DAI AWAAZ CODE Pakistan Quaid-e-Azam University Community Appraisal and Motivation Program Bargad Bedari Sahil People, Development & Policy Initiatives Mashal-e-Rah AAN Associates
University of Management and Technology Nana Sahab Development Society Centre for Dialogue and Action Center for Social Justice Insan Foundation YES Network
Pakistan Fisherfolk Forum
Charter for Compassion Peace Education Welfare Organization
46 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 47 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Participating organisations
AAN Associates AAN Associates operates as a social enterprise, where the work is driven by motivation to facilitate and enable development partners to explore innovative, sustainable and contextually relevant solutions to development challenges. Participant: Nadeem Haider
BARGAD BARGAD engages with young people across the country in colleges and universities, both secular and those affiliated with religious seminaries. More than 800 volunteers work for BARGAD. Participant: Sabiha Shaheen
Bedari Bedari promotes peace and harmony as a prerequisite for women’s empowerment in Pakistan. Participant: Safeer Ullah Khan
Charter for Compassion (CFC) CFC teaches peace education in schools around Karachi, Pakistan. Participant: Zareen Qureshi
Centre for International Peace and Stability The Centre for International Peace and Stability (CIPS) runs academic and research programmes, promoting Pakistan’s contribution to peacekeeping around the world. Participants: Musharaf Zahoor, Asma Nasar, Waseem Janjua
Centre for Dialogue and Action, FCC The Centre for Dialogue and Action, at Forman Christian College (a Chartered University), promotes peace through research, classes and activities that foster appreciation of ethnic, religious and gender divisions in Pakistan and the wider global context. Participant: Dr Amineh Hoti
Centre for Social Justice The Centre for Social Justice (CSJ) advocates for human rights, democratic development and social justice in Pakistan, particularly for marginalised groups. Participant: Naumana Suleman
Community Appraisal and Motivation Program CAMP works with underprivileged communities in Khyber Pakhtunkhwa and the Federally Administered Tribal Areas (FATA) on peace and security, human rights, and development. Participant: Naveed A Shinwari
CODE PAKISTAN CODE PAKISTAN works to build an inclusive and prosperous Pakistan through development and education initiatives. Participants: Dilawar Khan, Aarish Ullah Khan
DAAI/AWAAZ AAWAZ works towards enhancing tolerance for diversity and strengthening the capacity of communities to prevent disputes peacefully, without resorting to violence. Participant: Uzma Latif
47 Peace Direct. Local approaches to preventing violent extremism in Pakistan. International Islamic University, Islamabad The International Islamic University, Islamabad (IIUI) is a multi-cultural hub of learning for the students of more than 40 countries with 9 faculties. Participant: Ali Tariq
Initiative for Peace and Development (IPAD) IPAD focuses on marginalised communities to provide a platform to discuss peace and promote it through sport and community interaction in Pakistan. Participant: Fatima Jafferi
Insan Foundation Trust Insan Foundation Trust (IFT) works with all parts of society to promote the ideas of peace, democracy and equality. IFT is currently running a programme called ‘Act for Change’ with about 4,000 Pakistani and Afghan refugees, in NWFP. Participant: Kishwar Sultana
Just Peace Initiatives Justice Peace Initiatives (JPI) works to build a society based on peace and justice by harnessing the creative energies of the poor and disadvantaged. Participant: Ali Gohar
Khadim UL Khalaq Foundation Khadim Ul Khalaq Founadation (KKF) is a social welfare organisation focusing on youth, education and peace in Pakistan. Participant: Farooq Afridi
Mashal-e-Rah/Journalist with Tajzyat Mashal-e-Rah is a program that aims to counter the social infl uence that often leads to uninformed decisions and unconscious engagement with religious, social and political cults. Participant: Umar Qasmi
National Defence University The Department of Peace & Confl ict Studies is part of the Faculty of Contemporary Studies at the National Defence University (NDU). Pakistan is one of the leading contributors to UN Peacekeeping Missions, so the department helps prepare soldiers for such duties. Participants: Maria Saifuddin Effendi, Dr Khurram Iqbal
Nana Sahib Development Society (NSDS) Nana Sahib Development Society (NSDS) is an independent think-tank working to strengthen civil and political society based on principles of social justice and peace. Participant: Mujeeb ur Rehman
Omar Asghar Khan Foundation Omar Asghar Khan Foundation (OAKDF) strives for a peaceful and just Pakistan. They are active members of the ‘Pathways to Peace’ network of civil society organisations working for peace. Participant: Rashida Dohad
PAIMAN Alumni Trust PAIMAN is involved in a range of activities with women and young people in some of the areas worst affected by Pakistan’s confl ict. Participant: Mossarat Qadeem
48 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 49 Peace Direct. Local approaches to preventing violent extremism in Pakistan. Pakistan Fisherfolk Forum The Pakistan Fisherfolk Forum (PFF) works for the advancement of social, economic, cultural and political rights of fisherfolk and peasants in Pakistan. Participant: Jamil Junejo
Pakistan Peace Collective The Pakistan Peace Collective (PPC) is a project of the Government of Pakistan which has bolstered resilience against extremism and violence in Pakistan. Participants: Muhammad Akmal Khan, Usman Zafar
Peace & Education Foundation The Peace & Education Foundation (PEF) works to prevent, mitigate and transform religious conflicts through education and non-violent means. Participant: Rashad Bukhari
Peace Education Welfare Organization Peace Education Welfare Organization (PEWO) provides support to schools that have shown commitment to creating and maintaining a culture of peace in Pakistan. It has over 100 member schools. Participant: Nadeem Ghazi
People, Development & Policy Initiatives People Development & Policy Initiative (PDPI) works to promote a just and progressive society, free of discrimination. Participant: Shahid Ehsan
Quaid-e-Azam University The Quaid-e-Azam University is a public research university located in Islamabad, Pakistan. Participant: Bashir Ahmed Tahir
Renaissance Foundation for Social Innovation Renaissance Foundation for Social Innovation (RESIP) works with young people in Pakistan to promote a peaceful, harmonious future. Participant: M Ayub Ayubi
Sahil Sahil is an organisation that is working to develop a protective environment for children free from all forms of violence especially child sexual abuse. Participant: Dr Manizeh Bano
Sustainable Peace and Development Organization Based in Khyber Pakhtunkhwa province of Pakistan, Sustainable Peace and Development Organization (SPADO) is a network of more than 50 NGOs involved in awareness raising, research and lobbying on small arms and landmines. Participants: Raza Shah Khan, Nasreen Samad
Strategic Vision Institute Strategic Vision Institute (SVI) aims to offer foresights on issues of national and international importance through professional expertise and independent research. Participant: Prof Zaffar Cheema
Swat Youth Front Swat Youth Front (SYF) is a youth organisation working in the areas of peace, poverty reduction, women’s empowerment and human rights. Participant: Haris Badar
49 Peace Direct. Local approaches to preventing violent extremism in Pakistan. University of Management and Technology The University of Management and Technology (UMT) is a private university located in Johar Town, Lahore, Pakistan. It is government chartered and recognised by the Higher Education Commission of Pakistan. Participants: Fatima Sajjad, Muhammad Feyyaz
University of Peshawar The University of Peshawar, is a public research university located in Peshawar, Khyber-Pakhtunkhwa, Pakistan. Participant: Dr Kashif Saeed Khan
Youth Engagement Services Network Youth Engagement Services (YES) Network Pakistan is a leader in the field of youth social entrepreneurship in Pakistan. Participant: Ali Raza Khan
Individual experts
Lubna Javaid
Dr Syed M Ali Shah
Anam Zakaria
Imran Munir
Madiha Shafi
Zeenia Shaukat
Sarfraz Ahmed Rana
Mian Khuram Shahzad
Shahab Khalid
Zulfiqar Shah
50 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 51 Peace Direct. Local approaches to preventing violent extremism in Pakistan. References
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52 Peace Direct. Local approaches to preventing violent extremism in Pakistan. 53 Peace Direct. Local approaches to preventing violent extremism in Pakistan. © Aware Girls
53 Peace Direct. Local approaches to preventing violent extremism in Pakistan. © Angela Catlin
About Peace Direct
Peace Direct works with local people to stop For more information on the planned series of violence and build sustainable peace. We believe reports, please contact us. that local people should lead all peacebuilding efforts, and this report is the second in a series www.peacedirect.org that will canvas local views on violent conflicts www.insightonconflict.org
around the world in an effort to highlight local Registered charity 1123241 capacities for peace and local expertise. Registered 501(c)(3)
Photo: Gulalai Ismail of Aware Girls leads a local community training session on women’s rights, gender equality and peace in Pakistan. Aware Girls run training sessions to train young men and women to turn away from violent extremism through peer-to-peer outreach and support.